He's stating the never intended for it to be anything other than clean hits but now believes the players might have taken it farther than he intended.
(And when I say "he", of course, I am referring to the NFL lawyer that drafted it.)
That way, the league can still punish the players, both for a PFP AND for going 'too far' while GW gets to proclaim his relative innocence, and the league gets to use the 'rogue player' defense in the concussion suits.